Inglés

Revista Chilena de Derecho, vol. 41 Nº 3, pp. 993 - 1015 [2014]
THE EUROPEAN CITIZENS’ INITIATIVE: A USEFUL
INSTRUMENT FOR SOCIETY AND FOR CITIZENS?
LA INICIATIVA CIUDADANA EUROPEA: ¿UN INSTRUMENTO ÚTIL
PARA LA SOCIEDAD Y PARA LOS CIUDADANOS?
OANA - MARIUCA PETRESCU1
ABSTRACT: The necessity to strengthen in a way or another citizen’s involvement in the
political life of the European Union (EU) is an old issue, but the first unsuccessful attempt
to introduce it in a treaty, as a binding legal instrument, took place in 1992. Since then, the
importance of involving the Europeans increased constantly taking into account the political,
economical, and social realities of the 1990s and 2000s, which determined the leaders of the
Member States of the European Union to find the best “political channels” to stipulate both
in the primary and in the secondary European legislation, as a “blank insurance” that this
right will be officially regulated and promoted at the European level.
Therefore, this article will examine, on the one hand the evolution of the European
citizenship and enshrining the political rights for the Europeans, and on the other hand will
present a brief history of designing this instrument, if the outcome of these political efforts,
namely the European Citizens’ Initiative Regulation (ECI), adopted in 2011, represents,
after all, a useful or un-useful instrument to be used by the citizens, having also the belief
that this supranational instrument will make the citizens more active in using this right of
initiative.
Key words: Right to initiative, treaties, European Constitution, Regulation, political rights.
RESUMEN: La necesidad de fortalecer, de una u otra manera, el involucramiento de los ciudadanos en la vida política de la Unión Europea (UE) es un asunto antiguo, pero el primer
intento fracasado para incluirlo en un tratado, como un instrumento legal vinculante, tuvo
lugar en 1992. Desde ese entonces, la importancia de involucrar a los europeos en la vida política ha ido en aumento, tomando en cuenta las realidades políticas, económicas y sociales de
las décadas de 1990 y 2000, convenciendo a los líderes de los Estados miembros de la Unión
a encontrar los mejores “canales políticos” para estipular, tanto en la legislación europea de
carácter primario y secundario, como un “seguro en blanco”, que este derecho sería oficialmente regulado y promovido a nivel de la Unión.
Por lo tanto, este artículo examina, por un lado, la evolución de la ciudadanía europea y que
consagra los derechos políticos de los europeos, y por otro, presentará una breve historia de la
creación de este instrumento, y si el desarrollo final de este esfuerzo político, a saber la Iniciativa Ciudadana Europea (ICE), adoptada el 2011 es o no, después de todo, un instrumento
que será usado por los ciudadanos, teniendo también la convicción que este instrumento supranacional fomentará la participación de los ciudadanos, utilizado su derecho a la iniciativa
legislativa.
Palabras clave: Iniciativa legislativa, tratados, Constitución Europea, regulación, derechos
políticos.
1
Oana Petrescu is PhD., Postdoctoral Researcher within the European Integration Research Team, Faculty of
Law, University of Deusto, Bilbao, Spain, e-mail: [email protected].
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PETRESCU, Oana - Mariuca
“The european citizens’ initiative: a useful instrument for society and for citizens?”
I. GENERAL CONSIDERATIONS
The intention of adopting an instrument providing for a set of rights for European
citizens, including the right to express themselves, freely and with no difficulties, as
“partners” in the decision-making and legislative procedure of the European institutions,
was inexistent in the early 1950s, when the European continent was recovering from
the severe consequences left by the Second World War, and a daring economic plan, the
Marshall Plan2, was implemented.
During that period, the politicians were unable to pay attention to the “political
voice” of the Europeans due to several important factors such as: the harsh economic
and political situation existed at that time in Europe; the instauration of the communist
regimes in the Central and Eastern part of Europe3; the strong influence of the soviet
regime in that part of Europe and its separation from the Western Europe’s democratic
values, especially when the debate and stipulating of such rights in the national legislations
were a tabu subject, while the freedom of expression of the citizens was prohibited.
Except those already mentioned, other social factors (namely: gender employment
gap, the lack of social cohesion in adopting the relevant policies for the Europeans or the
social inequalities on health outcomes), determined a severe deficiency of communication
between the citizens and the authorities involved in the decision-making process both
at national level and at the level of the former European Communities, presently the
European Union (EU).
In spite of several enlargements of the European Communities, which took place
during the 1970s and 1980s, the idea to initiate, adopt and implement the political
participation of the citizens in the democratic life of the Communities was still far away
from what we know it is today, because other issues were considered to be more important
at that time, such as: recovering and consolidating the economies, especially when the
countries stopped charging custom duties when they traded with each other, as a result
of the new commercial agreements, and especially of the new Common Agricultural
Policy4, adopted and implemented starting with 30 July 19625; drafting the first plan for
a single currency and introducing a new Exchange Rate Mechanism (ERM), as well as
adopting a strategic plan to create an economic and monetary union; implementation of
a new common regional policy by creating the European Regional Development Fund in
December 1974 having as principle aim to help, financially speaking, the poorest regions
of the Europe in order to improve their roads and communications, to attract investments
and to create more jobs; the fight against the increased pollution in Europe, which
determined adopting the first documents in this field, by the European institutions etc.
2
Officially known as the European Recovery Program. The Marshall Plan was developed between April 1948
and December 1951, being an U.S. sponsored program designed to rehabilitate the economies of 17 Western
and Southern European countries, http://global.britannica.com/EBchecked/topic/366654/Marshall-Plan
(accessed February 17th, 2014).
3
Most of these regimes fall down in 1989 and in the early of 1990s.
4
http://ec.europa.eu/agriculture/cap-history/index_en.htm (accessed February 17th, 2014).
5
http://europa.eu/about-eu/eu-history/1960-1969/index_en.htm (accessed February 17th, 2014).
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“The european citizens’ initiative: a useful instrument for society and for citizens?”
Within the same period, it is worth mentioning, political speaking, the adoption
of the Decision and Act concerning the election of the representatives by direct universal
suffrage in 19766, while in 1979, the citizens of nine Member States of the European
Communities elected for the first time by direct suffrage7 their representatives in the
European Parliament, which, from our point of view, marked a crucial moment in
developing the political and democratic participation of the Europeans in the former
European Community’s life. In addition, the first elections represented a meaningful
development in the equal representation of women and men, while the strong engagement
of the European Parliament to gender problems has been proved by establishing the ad-hoc
Committee on Women’s Rights and the Committee of Inquiry on the situation of women
in Europe8.
Practically, this is the moment when the democratic participation of the citizens is
officially recognised in a general manner, is spite of the fact that the important role in the
legislative process was still given to the European institutions9.
It took years since other improvements have been taken through the Treaty on
European Union (1992)10 and the Treaty of Amsterdam (1999)11 by adding new political
rights12 to those existed already in the benefit of the Europeans. And yet, all these
amendments were insufficient to increase the political role of the citizens in the European
level policy making as “active partners”, even though important changes have been brought
to the European institutions, with final aim to grant a stronger “voice” to Europe at
international level, from political and institutional viewpoints.
The situation changed in 2009 when the Treaty of Lisbon brought significant
amendments, which represent a stone-corner in enhancing the democratic participation
of the citizens in the decision-making procedures at the European level as well as an
essential supplement of civil rights and tools of direct democracy already granted, such
as: the right to petition before the European institutions, bodies, organs and offices; the
right of petition to the European Parliament or to the right of appeal to the European
Ombudsman13 in the cases when the citizens consider that their rights have been violated
by the European authorities, lato sensu, or the right to seek information on the activities or
6
These documents were signed in Brussels on 20 September 1976 and entered into force on 1 July 1978 after
its ratification by all the Member States; STANISLAS (2007) p. 418.
7
Before 1979, the members of the European Parliament were delegated by national parliaments of the
Member States.
8
PIODI (2009) p. 1.
9
PETRESCU (2013) p. 46.
10
http://eur-lex.europa.eu/en/treaties/dat/11992E/tif/JOC_1992_224__1_EN_0001.pdf (accessed February
17th, 2014).
11
http://eur-lex.europa.eu/en/treaties/dat/11997D/tif/JOC_1997_340__1_EN_0005.pdf (accessed February
17th, 2014).
12
Namely: the right to vote; the right to be elected in the legislative bodies or other representative organs; the
right to hold public offices etc.
13
http://www.eu-koordination.de/PDF/steckbrief-european-citizen-initiative.pdf accessed February 17th, 2014).
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“The european citizens’ initiative: a useful instrument for society and for citizens?”
policies of the European institutions in the framework of the Regulation on access to EU
documents14, with amendments.
A decisive decision taken in enhancing the political rights of the citizens, as part of
their direct involvement in the European legislative process, is considered to be the adoption of the Regulation (EU) nº 211/201115 on the citizens’ initiative, based on what the
citizens’ initiatives are registered on the website of the European Commission starting with
1 April 2012, after fulfilling several criteria, that will be analyse within the present paper.
II. THE LONG JOURNEY FROM REGULATING THE EUROPEAN CITIZENSHIP
TO RECOGNIZING AND EXERCISING THE CITIZENS’ POLITICAL RIGHTS
If the contemporary national citizenship is the product of the modernity, determined
by the economic, social and political changes occurred during the eighteenth and nineteenth
centuries, which constantly transformed the states, the national communities and the
position of the citizens in their societies16, the idea of a common citizenship for all the
Member States of the European Communities “has been entrenched in the Europe’s political
leaders’ minds17”, in the twentieth century, more precisely by the mid-1960s, where the
Western economies were recovered and the right to free movement within the Communities,
as well as the right to reside in any Member States having as main purpose to work, including
the right to remain in the territory of another Member State after having been employed on
that territory, were implemented in three stages within the European Communities, all of
these leading to an important decreased of the unemployment rate between 1958 and 1964
in the six founding Member States existed at that time18.
The propitious economic situation, the efficient implementation of the free
movement of workers, as stipulated for the first time in the Treaty of Paris (ECSC
Treaty) and expended later in the Treaty of Rome establishing the European Economic
Community (EEC), comprising the right to accept offers of employment, to move freely
among the Member States for this purpose and to reside in any Member State if employed
there, determined Walter Hallstein19 to consider, at the beginning of 1970s, that all these
factors represent “the most spectacular points in the programme which is to lead to the
integration of Europe20”, remaining at that time un-answered the question raised from
14
Regulation (EC) nº 1049/2001 of the European Parliament and of the Council of 30 May 2001 regarding
public access to European Parliament, Council and Commission documents, published in JOCE L 145 of
31.05.2001.
15
It was published in JOUE L 65 of 11.03.2011,
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2011:065:0001:0022:EN:PDF (accessed
February 17th, 2014).
16
CHALMERS, DAVIES and MONTI (2010) p. 441.
17
MAAS (2005) p. 4.
18
Germany, France, Italy, the Netherlands, Belgium and Luxembourg.
19
First President of the European Commission, between from 1958 to 1967.
20
MAAS (2005) p. 4.
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“The european citizens’ initiative: a useful instrument for society and for citizens?”
the constitutional point of view: “do [these points represent] the beginning of a common
European «citizenship»?”.
The answer came, a little bit later, in 1972 from Hallstein’s successor as President
of the European Commission, Sicco Mansholt, who argued that the “Community, which
has achieved the opening of frontiers for trade in industrial and agricultural goods, must
[...] open their [physical borders as well] which still keep [the] citizens apart from one
another [including from political standpoint] so that citizens [...] could [finally enjoy their]
«European civic [and political] rights»21”.
Starting from this point, one of the first responds was the joint proposal coming
from the Belgium and Italy, who in October 1972 suggested granting few political rights
to all the Community citizens, namely the right to vote and be elected in local elections,
initiative which was welcomed by the President of the European Commission, at that time,
Sicco Mansholt and put in practice seven years later, because of the complexity of the issue
and the political mentality existed at that time in Europe.
Between 1973 and 1981, other political steps have been made in completing the
image of an unique citizenship granted to all the citizens residing on the same Community
territory, by adopting relevant documents such as: a report on European identity concerning
the special rights given to the citizens and the need to safeguard principles of representative
democracy, rule of law, social justice, and respect for human rights; establishing a working
group to study the possibility of a future unique European passport, and the harmonization
of the legislation affecting foreigners, including the abolition of the passport controls within
the Community territory; a resolution supporting the European citizenship22 and finally
a proposal for a Council Directive on a right of residence for nationals of Member States
in the territory of another Member State23, who had as main goal to abolish all remaining
restrictions on movement and residence for nationals of Member States.
Staying on the same route of shaping the idea of a European citizenship, it is notably
to mention that in 1984 the European Parliament adopted with amendments the Draft
Treaty on European Union24, also known as “Spinelli draft”, which in Article 3 comprised
a genuine definition of the future common citizenship, stating that “the citizens of the
Member States shall «ipso facto» be citizens of the Union. Citizenship of the Union shall
be dependent upon citizenship of a Member State; [...] Citizens of the Union shall take
part in the political life of the Union in the forms laid down by the Treaty, enjoy the rights
granted to them by the legal system of the Union and be subject to its laws25”. Analyzing
the amendment adopted by the European Parliament we can observe that, for the first
time, the European citizenship is mentioned expressis verbis in a Draft Treaty and it
21
MAAS (2005) p. 5.
This resolution was adopted by the European Parliament, in 1977; MAAS (2001) p. 2, www.yale.edu/leitner/
resources/docs/2001-26.pdf (accessed February 17th, 2014).
23
This proposal was adopted in 1979; http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:1979:207
:0014:0016:EN:PDF (accessed February 17th, 2014).
24
The Draft Treaty was published in JOCE C 77 of 14.02.1984.
25
http://www.cvce.eu/obj/draft_treaty_establishing_the_european_union_14_february_1984-en-0c1f92e8db44-4408-b569-c464cc1e73c9.html (accessed February 17th, 2014).
22
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belongs to the citizens in parallel with their national citizenship with the condition to be
ressortissants (nationals) of one of the former European Community Member States.
The above mentioned amendments together with the White Paper on Completing the Internal Market issued by the European Commission in June 198526 (devoting an
entire section to the free movement for labour and the professions, with the title “A new
initiative in favour of Community citizens”), the European Court of Justice’s interpretation
on the freedom of movement27, and the Schengen agreement adopted in June 1985 (abolishing completely the physical borders between five Member States, including the border
controls for their own citizens, as “a major step forward on the road toward European
unity28”) represented the legal basis for the future “core European citizenship29”, that will
be stipulated later in the Treaty of Maastricht (1992).
The geopolitical changes occurred in the Eastern Europe due to the fall of the communist regimes at the end of the 1980s and at the beginning of the 1990s as well as the
fall of the Berlin’s Wall in October 1989, as a communist symbol of the division between
the two German states, the Federal Republic of Germany (FRG) and the Eastern German
Democratic Republic (GDR) and the discussions to reunify them into one state, the Federal Republic of Germany30, represented the main concerns of the Dublin European Council
summit (April 1990), in which context a new “future political union [was taken into account more seriously by stipulating the] European citizenship rights31”, including granting
the political rights.
A joint letter preceding the Dublin summit (April 1990), when France and Germany called for “an [...] Intergovernmental Conference on political union to be held parallel to the conference on economic and monetary union”, and the notion of the future
European citizenship would be integrated in a future Treaty on the European Union and
would also extend specific rights (e.g.: human rights, social and political rights, freedom
of movement) in the favour of the Europeans, represented one of the most daring political
moments of the 1990s.
In this context, at the end of September 1990, the Spain government, as an active
defender of the European citizenship’s concept, and based on the general ideas stipulated
26
http://europa.eu/documents/comm/white_papers/pdf/com1985_0310_f_en.pdf (accessed February 17th,
2014). According to paragraph 88 of the White Paper, the European Commission considers to be crucial that
until 1992 the obstacles which still exist within the Community territory regarding the free movement of the
workers to be removed.
27
MAAS (2005) p. 7; Case 139/85 Kempf v Staatssecretaris van Justitie, Judgment of 3 June 1986, published in
European Court Reports 1986,
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:61985CJ0139:EN:HTML (accessed February
17th, 2014); Case C-292/89 The Queen v Immigration Appeal Tribunal, ex parte Gustaff Desiderius
Antonissen, published in European Court reports 1991, http://eur-lex.europa.eu/LexUriServ/LexUriServ.
do?uri=CELEX:61989J0292:en:HTML (accessed February 17th, 2014).
28
MAAS (2005) p. 8.
29
MAAS (2005) p. 8.
30
The Federal Republic of Germany (FRG) and the Eastern German Democratic Republic (GDR) reunited
on 3 October 1990.
31
MAAS (2005) p. 10.
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“The european citizens’ initiative: a useful instrument for society and for citizens?”
in a document of 1978 entitled “Towards a Europe for Citizens32”, defined in the draft
proposal “The road to European Citizenship” the planned European citizenship as an integrated space in which the Europeans play a central and fundamental role, strengthening in
the same time the “citizens’ feelings of belonging to one legal [and unique] Community”,
proposal that was supported later by the European institutions during the elaboration of
the Maastricht Treaty33.
The official recognition of the European citizenship came, at the end, during the
Maastricht European Council summit, held on 9 and 10 December 1991, where the final
text on this issue was agreed in the early hours of 11 December 1991, after long debates
and negotiations between the Member States, having different economic interests and political viewpoints34, stipulating in former Article 8 that “(1) The citizenship of the Union is
[...] established. Every person holding the nationality of a Member State shall be a citizen
of the Union. (2) Citizens of the Union shall enjoy the rights conferred by this Treaty and
shall be subject to the duties imposed thereby”.
Therefore, the Maastricht Treaty introduced for the first time the legal concept of
the European citizenship35, as part of the transition from a mainly economic community to
a political union, amending the Treaties of Rome, and conferred also a limited number of
political rights36 with practical and symbolic importance in reducing the European Union’s
democratic deficit, forming a base for the construction of a genuine European identity37 and
determining a Union of all these people into a truly meaningful European citizenship38.
Five years later, through the Treaty of Amsterdam (1997) many Member States proposed on the one hand to extend the citizenship rights’ sphere by adding others, which
proved to be unsuccessful, so that the only right recognised and enshrined in former Article 8d was the right to write to any of the European “institutions or bodies” and to receive
a reply in any of the 11 official languages, existed at that time. And yet these amendments
were not enough to support the citizenship to become a key element of Amsterdam and
to promote other political rights in the benefit of the citizens, transforming them into real
“partners” of the European institutions in the decision making process.
On the other hand, in order to eliminate any doubts that citizenship might use to
transform the European Union into a sovereign state, as a federal or co-federal of states, and
to weak the national citizenship, the Member States agreed to stipulate expressis verbis in
former Article 17 of the Treaty of Amsterdam establishing the European Community that the
“citizenship of the Union shall complement and not replace national citizenship”, especially
32
This report was elaborated by Leonard Clemence “Leo” Tindemans, former prime minister of Belgium
between 25 April 1974 and 20 October 1978, http://aei.pitt.edu/942/1/political_tindemans_report.pdf
(accessed February 17th, 2014).
33
CHALMERS, DAVIES and MONTI (2010) p. 444.
34
MAAS (2005) p. 12.
35
CRAIG and DE BÚRCA (2011) p. 819.
36
Former Articles 22-25 TEU. We are referring to the right of alien suffrage, the passive and active electoral
rights created for the Europeans residing in the host Member States etc.
37
ROSTEK, DAVIES (2006) pp. 1 and 6.
38
HORSPOOL, HUMPSHREYS (2010) p. 386.
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when the primary feature of citizenship is to conferral certain obligations and rights including political ones39. This means that the European Union is a “union of many, but not the
creation of a new people40”, highlighting thus the peculiar nature of such entity.
Even though, incremental changes to the European citizenship have been taken
through the Treaty of Nice (2001), by extending the qualified majority voting to free
movement of citizens within the European territory, yet this treaty did not added further
political rights for the citizens. Nonetheless, it is easy to observe that the Europeans were
still unable to participate actively in the political life of EU.
For the first time since 1992, the Laeken European Council summit of December
2001 signified the moment when the need to increase the European Union’s democratic
legitimacy and to adopt legal instruments for a better democratic scrutiny at all levels of
government, represented serious issues which determined the European political leaders
to state in the Final Declaration on the Future of the European Union41 that “the Union,
[as a whole and ] the European institutions [in particular] must be brought closer to its
citizens, calling [also] for a clear, open, effective, democratically controlled Community approach42”, including by adding new political rights for the citizens, such as the right to participate effectively in a way or another to the political life of the European Union, which
unfortunately was not put into practice until 2009, through the Treaty of Lisbon.
Taking into consideration that the topic of the right to initiate was still pending
since the 2001 Laeken summit, because the political leaders did not find the proper way
to stipulate it, in 2009 the democratic participation of the citizens in the decision making
process was finally enhanced through the Lisbon Treaty, by laying down their political right
to initiate proposals and send them to the European Commission only if the legal requirements are fulfil.
As for the European citizenship, the Lisbon Treaty did not introduce important
amendments, placing this issue “in the context of a new emphasis on representative and
participatory democracy, including a new agenda-setting citizen’s initiative43”. The only
significant amendment made was to include the European citizenship in the Charter of
Fundamental Rights of the European Union, having legally binding, and to redefine the
citizenship as a ‘bundle of rights’.
The general framework of the newest right officially recognised for the citizens in a
treaty could not be completed without mentioning the adoption, at the level of secondary
European legislation, of an innovative tool, namely the Regulation (EU) nº 211/2011 on
the citizens’ initiative, which entered into force on 1 April 2012, as part of the active participation of the Europeans in the EU level policy making.
39
ROSTEK, DAVIES (2006) p. 4.
COLOMBO (2004) p. 24.
41
Annex I attached to the Final Declaration, 2001, p. 20, http://ec.europa.eu/smart-regulation/impact/
background/docs/laeken_concl_en.pdf (accessed February 17th, 2014).
42
Annex I attached to the Final Declaration, 2001, p. 21.
43
CRAIG and DE BÚRCA (2011) p. 819.
40
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“The european citizens’ initiative: a useful instrument for society and for citizens?”
For a better understanding of this new legal instrument, in the following we will
analyse it, pointing out in the same time the utility of such instrument, both for citizens
and for civil society.
III. A GENUINE INVOLVEMENT OF THE CITIZENS IN THE POLITICAL
LIFE OF THE EUROPEAN UNION. IS EUROPEAN CITIZENS’ INITIATIVE A
USEFUL INSTRUMENT?
Before 1976, the political role of the citizens in the legislative process of the former
European Communities was quasi - inexistent because of the small number of the legal initiatives to regulate this presence. The situation has been changed in a positive way starting
with 1976, when the Decision and Act on European elections by direct universal suffrage
by citizens, have been adopted. This is the moment when the democratic participation of
the citizens started to be shaped in a more concrete manner44, contributing thus to the political development of the European Community45 and reducing the democratic deficit.
Later, the Treaty on European Union (1992) and the Treaty of Amsterdam (1999)
took further steps in increasing the role of the European Parliament in the decision-making
process of the Community, adding new political rights46 to the European citizens, having
as final goal to reduce as much as possible the democratic deficit. These amendments were
insufficient to enhance the political role of the citizens in the legislative process, as “coauthors”, but not only as passive beneficiaries of all the changes made in the legislation.
A decisive moment for stipulating clearly the right to initiative for citizens was the
Constitutional Treaty (2003) which, among other interesting innovations, provided for the
citizens’ initiative, whereby a million citizens from a significant number of Member States
should sign a petition and submit it then to the European Commission in order to start
the legislative process. However, the provisions of this hybrid document were still limited
to the role of the principles of participatory and representative democracy regarding the
functioning of the European institutions, and the policy-making efforts of the Union itself,
not the Member States or to the citizens47, but on the other hand it opened the way for a
future settlement of this issue.
Once the Constitutional Treaty was withdrawn because of the failure to be ratified
by France and the Netherlands in the middle of 2005, another moment in drawing the
concept of a “citizens’ initiative” is represented by the document “More democracy in Europe48” issued in 2005 by the Democracy International49, in which were inserted visionary
44
PETRESCU (2013) p. 46; SCHNAPPER (1997) p. 203.
WARLEIGH (2001) pp. 34-35.
46
By political rights we may understand a variety of such rights, namely: the right to vote; the right to be
elected in the legislative bodies or other representative organs; the right to hold public offices, the right to
petition etc.
47
SHAW (2007) p. 2556.
48
www.more-democracy-in-europe.org/sites/more-democracy-in-europe.org/files/u293/di-aufruf-englisch-2seitig.pdf (accessed February 17th, 2014).
49
Democracy International is a network specialised on European democracy movements.
45
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ideas for that date about the most important elements of the direct democracy (a direct
involvement of the citizens in the legislative procedure; the methods to involve the citizens
etc.), ideas which have finally been put into practice in 2011, when the Regulation nº 211
has been adopted, as the first example of the “transnational participatory democracy”, allowing the Europeans to play a more active role in shaping different policies of Europe and
to use a “new generation of ‘iDemocracy tool for the twenty-first century’, more direct and
more transnational [...] than any participatory procedure before it50”. In other way of saying, the citizens will participate to the normal political life of the European Union, with
no restrictions, exercising fully their rights and with more trust in the democratic system51,
in which context they will ask the European Commission to submit a legislative proposal
“within the framework of its powers”, as it is stipulated by Article 11 para. 4 TEU.
After a long and arduous process in recognising the political role of the citizens, the
Treaty of Lisbon (2009) provided for in Article 10 para.3 TEU that “every citizen shall
have the right to participate in the democratic life of the Union”, encouraging on the other
hand “the cross-border public debate about [the various] EU policy issues52”, such as: political, education, environment, economic etc.
As concern the previous paragraphs, few comments should be made. The first comment is related to the fact that the article already mentioned uses the words “the citizens
shall have the right” and not “might have the right”, which from our perspective means a
clear and strong signal that the European legislator wanted to give by pointing up the importance of the citizens’ involvement in the European political life, and making them more
active and responsible for the current problems that they are dealing with daily.
Secondly, the European Citizens’ Initiative represents the first and daring legislative
instrument of direct democracy participation, an innovative element, with supranational
value, because it was adopted by the European Union, as an entity, and not by one or several Member States, creating in the same time an additional direct connection between the
European citizens and EU’s institutions53.
Thirdly, the citizens have eventually recognised this right only regarding the initiatives drafted in the field of secondary European legislation, because, as concern the primary
legislation, Article 48 TEU, as amended by the Lisbon Treaty, stipulates clearly which are
the revision procedures54; who can use the revision procedures and in which conditions; to
what extent the subjects can use these procedures; which institutions need to be consulted
during the revision procedures or other relevant details etc.
Though the importance of the political rights, in general, and of the electoral rights,
in particular, increased constantly since the Treaty of Maastricht (1992), nonetheless a
50
KAUFMANN (2012) p. 11.
IKEDA, KOBAYASHI, HOSHIMOTO (2008) p. 78.
52
Background speaking points for Zita Gurmai, MEP: The ECI regulation - the contribution of the European
Parliament, held in Barcelona, 25 March 2011, p. 1.
53
GARCÍA, LÓPEZ, MINCHEVA, SZELIGOWSKA (2012) p. 2.
54
MILLER (2012) p. 2.
51
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special tool for citizens to increment their participation in the European political life55 was
still required.
After two years from the provisions enshrined in Article 24 TFEU56, and after adoption of several decisive instruments (resolution of the European Parliament in May 200957,
proposal of the European Commission in March 2010), in February 2011 was adopted
the Regulation (EU) of the European Parliament and the Council nº 211 on the citizens’
initiative, in an area of EU competence, which defines the rules and the procedure governing this new legal tool involving the initiative to draft proposals through citizens’ committee58, and to forward them to the European Commission, as the “decisions shall be taken
as openly and as closely as possible to the citizens” (Article 10 para.3 TEU), by observing
legal provisions. This instrument fully entered into force one year later, at 1 April 2012.
Introduction of such instrument in a treaty motivated the European Commission
to state in the Green Paper published in 200959 that “it will add a new dimension to European democracy, complement the set of rights related to the citizenship of the Union and
increase the public debate around European politics, helping to bring a genuine European
public space”, recognizing on this occasion the absence of a European public sphere.
From the theoretical viewpoint, the objective of the Regulation (EU) nº 211/2011,
with enormous political potential for strengthening the democracy in European Union,
is to be clear, simple, user-friendly and proportionate to the nature of the citizens’ initiative in order to encourage this participation, to make the Union more accessible and more
closer to the citizens, or in other words to make Union “more friendly” in its relation to
citizens, being also consistent with the Union’s values60.
Instead, from the practical perspective, its uniform implementation is depending on
the proper measures taken by the citizens’ committees throughout the entire procedure and
in accordance with the Commission Implementing Regulation (EU) nº 1179/2011 of 17
November 201161 laying down technical specifications for online collection systems pursuant to Regulation (EU) nº 211/2011.
55
http://ec.europa.eu/public_opinion/flash/fl_292_sum_en.pdf (accessed February 17th, 2014).
Article 24 TFEU provides for that: “The European Parliament and the Council, acting by means of
regulations in accordance with the ordinary legislative procedure, shall adopt the provisions for the procedures
and conditions required for a citizens’ initiative within the meaning of Article 11 of the Treaty on European
Union, including the minimum number of Member States from which such citizens must come”.
57
European Parliament Resolution of 7 May 2009 requesting the Commission to submit a proposal
for a regulation of the European Parliament and of the Council on the implementation of the citizens’
initiative, http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//TEXT+TA+P6-TA-20090389+0+DOC+XML+V0//EN (accessed February 17th, 2014).
58
This committee is considered to be the official “organiser” of the initiative and is responsible for managing the
entire procedure. The committee must designate from among its members a representative and a substitute to speak
and act on their behalf, which will also the contact persons who will liaise between the committee and the European
Commission throughout the procedure, http://ec.europa.eu/citizens-initiative/public/how-it-works/committee.
59
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0622:FIN:EN:PDF (accessed February
17th, 2014).
60
BESSON and UTZINGER (2008) pp. 185-208.
61
This instrument has been published in the JOUE L 301 of 18.11.2011, http://eur-lex.europa.eu/
LexUriServ/LexUriServ.do?uri=OJ:L:2011:301:0003:0009:EN:PDF (accessed February 17th, 2014).
56
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Analyzing this subject, one question raised, namely is the European Citizens’ Initiative
(ECI) a useful instrument both for the citizens and for the civil society? In order to understand such a complex mechanism as better as possible, in what follows we will make a presentation62 of the most relevant features of this legal tool, highlighting later the relevance for
the citizens and for the society, mentioning, in the end, few examples of initiatives that have
already collected the minimum number of signatures in order to be submitted to the European Commission as well as other technical things, taking into account that this instrument
represents so far, one of the best and viable legal instruments in the hands of citizens.
First of all, to have a better perception on this issue and to eliminate any confusion
that might occur as concern the petition, it is important to make a difference between the
citizens’ initiative and the mechanism already mentioned which is submitted by the citizens. Thus, the first represents “the legal tool” for the citizens to call directly on the European Commission to propose new legal acts or change existing European legislation, while
the petition represents a request to do something or to act in a way or another, submitted
either to the European Parliament as stipulated by Article 227 TFEU or to the European
Ombudsman in accordance with Article 228 TFEU, in all the cases when the citizens invoke the maladministration in the activities of the EU institutions, organs, offices and bodies, without fulfilling pre-conditions in order to submit it, such as: a minimum number of
signatures, a time period necessary to collect the signatures, formal guidelines for drafting
a proposal, specifically for the citizens’ initiative. As we can observe, there are two types of
petitions submitted to the European Parliament and to the European Ombudsman, where
the only condition is that it must affect the citizens directly and take the form of a request
or complaint, but very different from the citizens’ initiatives63.
Another important difference to make is that while the citizens’ initiative or digital
right of initiative64 was introduced, as a novelty, through the Lisbon Treaty in 200965, the
right to petition, recognised to the citizens, existed already under the previous treaties, being reiterated in the said Treaty.
Regarding the launching of a European Citizens’ Initiative, both the Green Paper
issued by the European Commission and the Treaty of Lisbon did not stipulate in a way
or another who has the right to start and to promote an initiative. Nevertheless, this controversy has been clarified in the Regulation (EU) nº 211/2011, which in Article 3 para.1
states that “the organisers shall be citizens of the Union66”. By the word “organizers” one
could understand that we are referring to a citizens’ committee, composed of at least seven
EU citizens who reside on the territory of at least seven different Member States of the European Union. Regarding the seven members of the citizens’ committee, the only rule that
counts, in order to register the initiative in a proper manner, is their country of residence,
which means that they can have the same or different nationalities.
62
More details can be found on: http://ec.europa.eu/citizens-initiative/public/guide (accessed February 17th, 2014).
http://www.europarl.europa.eu/aboutparliament/en/00533cec74/Petitions.html; https://secure.ombudsman.
europa.eu/en/atyourservice/secured/complaintform.faces (accessed February 17th, 2014).
64
SANGSARI (2003) p. 1.
65
http://ec.europa.eu/citizens-initiative/public/faq#q12 (accessed February 17th, 2014).
66
GŁOGOWSKI, MAURER (2013) p. 10.
63
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On the other hand, the non - EU citizens cannot be part of a citizens’ committee,
because the said Regulation also mention that “the organisers shall be [composed of ] citizens of the Union [...]” (Article 3 para.1), meaning that it is not enough for the non-EU
citizens to reside on the European territory but also they have to have the citizenship of
one of the 28 EU Members States, if we take into account the accession of Croatia to the
European Union, in July 2013.
As for the members of the European Parliament (MEPs), they cannot be counted
among the 7 citizens needed to register the initiative on the official website of the European
Commission, that is to say that MEPs cannot be founders of the proposed initiative but they
can be counted among the total members of that citizens’ committee, because the presence
of these members is an important political factor for enhancing the perception and public
awareness on the proposed initiative, as it happened in several cases, such as: “End Ecocide in
Europe: A Citizens’ Initiative to give the Earth Rights67”, which was supported by the members of the European Parliament from Germany, Austria and France or the initiative “Fraternité 2020 - Mobility. Progress. Europe68”. Supported by the members of the European Parliament from France, Germany, Belgium, Austria, Spain, United Kingdom and Lithuania69.
Furthermore, the usefulness of this transnational instrument determined many members of
the European Parliament to get involved in supporting the citizens’ initiatives70, no matter
if they have collected or not the necessary number of signatures to be forwarded then to the
European Commission. Taking into account this context, we can say that this instrument
proved to be a bold and useful tool for the European political leaders, so far.
Elaborating an initiative by its promoters71, in general terms and not as a proper
draft law, implies observing of several technical details in order to ensure a good promotion of the initiative and its visibility, among which we can mention: the title should have
maximum 100 characters, otherwise would be difficult to understand the main goal of the
initiative; the subject-matter, should have maximum 200 characters and should be written
in a clear and comprehensive manner; the description of the objectives on which the European Commission is invited to take attitude should have maximum 500 characters; the
personal details of the 7 members of the citizens’ committee (e.g.: full names, postal addresses, nationalities and dates of birth), indicating also the name of the representative and
the substitute as well as their E-mail addresses; all sources of funding and support for the
proposed initiative worth more than 500 € per year and per sponsor; the address of their
website, which from our perspective represents a good opportunity to add more information about the background of the initiative, the aim, the objectives, the target group envis67
http://ec.europa.eu/citizens-initiative/public/initiatives/ongoing/details/2013/000002 (accessed February
17th, 2014).
68
http://en.fraternite2020.eu/MEPs.html (accessed February 17th, 2014).
69
All data regarding various citizens’ initiatives mentioned already and supported by the members of the
European Parliament are updated until 17.02.2014.
70
For example, only for two initiatives (Unconditional Basic Income (UBI) initiative and Right2water
initiative, http://ec.europa.eu/citizens-initiative/public/welcome (accessed February 17th, 2014)) almost 109
members of the European Parliament have given their support.
71
http://ec.europa.eu/citizens-initiative/public/faq#q12 (accessed February 17th, 2014).
1005
1006
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aged, the partners from different countries and the sponsors, the status of the signatures
etc.; an annex of maximum 5 MB, in the form of leaflet, flyer or brochure, comprising
detailed information about this initiative and/or a draft legal act with maximum 5 MB,
as the final outcome of the initiative to be forwarded to the European Commission, as the
final phase of this proceeding.
Once drafted, the initiative is registered on the official website of the European Commission, and the organisers will have one year to collect at least one million of signatures,
coming from at least one quarter of 28 EU Member States (representing 7 or more Member
States). In this regard, the European Commission will make available open source software
to be used by the organisers and will adopt clear, undoubtful technical specifications in order to help building of their collection system. As concern the minimum number of signatories per member country, it is provided for in the Annex I of the said Regulation.
As concern the signatures collected either on paper or online, few explanations
should be added, as follows. If they are collected on paper, the signatures must comply
with the models for the statement of support provided for in Annex III of the Regulation,
and if they are collected online, and prior to initiating the collection of the signatures, the
organisers must ask the relevant national authority of the Member State, where the data
will be stored, to certify their online collection system in accordance with Article 6 para.2
of Regulation, with a deadline to reply of one month.
After collecting in one year, the number of signatures required, the citizens’ committee will submit them again to the relevant national authority in each country, for a careful
verification and certification, within a period of three months72. Thus, the national authorities should deliver certificates indicating the number of the valid signatures collected.
To this end, the national authorities will use appropriate checks to verify the statements,
which can include random sampling, as there are no rules specifying the criteria for the
verification of the statements.
Subsequently obtaining the certificates from the national authority, the organisers
finally submit their initiative to the European Commission that will have three months to
examine it and to decide how to react, issuing at the end a press release in which it will explain its conclusions on the proposed initiative, what action it intends to take, if any, and
its reasoning. During this period, the European Commission will meet the organisers at an
appropriate level so that they can have the opportunity to explain the issues inserted in their
initiative, while a public hearing organised at the European Parliament might occur in order
to present their initiative, as it was the case of the initiative “Right2water” when a public
hearing took place on 17 February 2014 at the premises of the European Parliament.
In light of the foregoing, it is important to add few comments in order to ensure o
better understanding of this complex instrument, as follows:
72
So far, three initiatives have been declared having reached the target of one million signatures in the EU
in at least seven Member States, as follows: “Right2Water” also known as “Water and sanitation are a human
right! Water is a public good, not a commodity!” (1,884,790 signatures), “One of us” (1,897,588 signatures),
and “Stop Vivisection” (1,326,807 signatures).
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a. After verifying the technical conditions, the European Commission will take its
decision based only on a political analysis considering the necessity, the importance
and the utility of the initiative for the entire European civil society; if the European
Commission decides to reject the proposed initiative, neither the Lisbon Treaty nor
the Regulation mention any means of appeal against this decision, which means that
this institution has the final “political word”.
b. Regarding the minimum age required to organise and to support an initiative, this
is the voting age for the European Parliament elections, which currently is 18 years
in every country, except Austria, where it is 16 years and “the Spanish Autonomous
Community of Catalonia73”, while the reason for admitting such indirect exception
was considered by the Committee on Petitions of the European Parliament an
opportunity “to encourage younger citizens’ participation in the democratic life
of the Union74” and not an obstacle for the youngers to be part of such European
movement.
c. If the European Commission is agreed with the initiative, the citizens’ committee
has to ask for the registration of their initiative in one of the official languages of
the European Union and in an online registry75 made available by the European
Commission, which has a period of two months to answer. If the initiative is
registered in good conditions, the organisers have the responsibility, and not the
European Commission, to add translations of their initiative in any other official
languages, as it was in practice the case of several initiatives, e.g.: ”European
Initiative for Media Pluralism”76” or “Do not count education spending as part of
the deficit! Education is an investment!77” etc.
From this rule, there are exceptions when the European Commission has the right
to refuse the registration of the proposed initiative when: the composition of the citizens’
committee does not follow the general rules enshrined in the Regulation; the initiative is
manifestly outside the scope of European Commission’s competences to propose legislation
or it is manifestly abusive, frivolous or vexatious or it is manifestly contrary to the EU’s
fundamental democratic values and principles stipulated in Article 2 TEU78. In the case of
subsisting one or more of these cases the European Commission will inform the organizers about its decision to deny the registration of the proposed initiative and also about the
possible judicial and extra-judicial remedies available, including the possibility to bring the
73
GARCÍA, LÓPEZ, MINCHEVA, SZELIGOWSKA (2012) p. 10.
http://www.europarl.europa.eu/sides/getDoc.do?language=EN&reference=A7-0350/2010 (accessed
February 17th, 2014).
75
http://ec.europa.eu/citizens-initiative/public/registration/ (accessed February 17th, 2014).
76
It was registered initially in English, and then translated in other 15, http://ec.europa.eu/citizens-initiative/
public/initiatives/ongoing/details/2013/000007 (accessed February 17th, 2014).
77
It was registered initially in Greek, and then translated in other 7 languages, http://ec.europa.eu/citizensinitiative/public/initiatives/ongoing/details/2013/000006 (accessed February 17th, 2014).
78
Brochure “The European Citizens’ Initiative”, The Greens/EFA in the European Parliament, Brussels, 2011,
p. 7, http://aei.pitt.edu/33631/1/wp24_EG.pdf (accessed February 17th, 2014).
74
1007
1008
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case before the Court of Justice of the European Union, as judicial remedy, or before the
European Ombudsman, as extra-judicial remedy.
Practically speaking, since April 2012 and until 17 February 2013, 17 initiatives79
have already been rejected, for example: “One Million Signatures For “A Europe Of Solidarity”; “The Supreme Legislative & Executive Power in the EU must be the EU Referendum as an expression of direct democracy” or “Enforcing self-determination Human Right
in the EU”, where the main reason for rejection was non-fulfilment of the conditions laid
down in Article 4 para.2 of the Regulation. Alternately, if the organisers will respect in
the future the conditions stipulated in the Regulation, and will redraft the proposals in a
proper manner there are no reasons, from our point of view, for the European Commission
to refuse again the registration of such initiatives.
Starting with 1 April 2015 and every 3 years after this moment, the European Commission will present a report on the implementation of this Regulation, pointing out the
problems already identified during the implementation of this new instrument, stressing
the strong and the weak points of it, and bringing the improvements and amendments to
the Regulation, as the case may be etc.
Sharing the opinion expressed in the doctrine80, we consider that the European
Citizens’ Initiative is a very useful instrument for the society because it introduces a new
form of public participation within the EU’s multi-level politics framework, adding a new
dimension to the European democracy, complementing the set of rights related to the
citizenship of the Union and increasing the public debate around the European politics,
helping in the same time to build a genuine European public space. Its implementation
will reinforce citizens’ and organized civil society’s involvement in shaping of EU policies,
without being manifestly against the values of the Union.
Both at European and national levels, the role of the citizens in the society, including by giving the possibility to promote proposals, is recognised in the secondary European
legislation as well as in their fundamental or specific laws. Much more, the citizens’ initiative is seen as the modality in which people can participate actively in the political life of
the European Union and in the interest of others (or in other way of saying “by citizens,
for citizens”) and also of their own state, by establishing new rules.
On the other hand, this new legal instrument allows for the greatest political involvement of the citizens in the decision-making process of the European Union from the
modern history of direct participation81. Furthermore, using this instrument will bring
only benefits to all Europeans, if we take into account that a minority of citizens, represented by the citizens’ committee, has the right to propose to the European general public, the adoption of a new law or modifying an existing legislative act if applicable, which
means a lot if we are thinking that until this Regulation the citizens did not have legal tools
to influence the legislative process, in a way or another.
79
80
81
http://ec.europa.eu/citizens-initiative/public/initiatives/non-registered (accessed February 17th, 2014).
SCHNELLBACH (2001) p. 1; CĂRĂUŞAN (2011) p. 20.
GARCÍA, LÓPEZ, MINCHEVA, SZELIGOWSKA (2012) p. 63.
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Furthermore, this Regulation is innovative for various reasons: it is the first example
of a transnational participatory mechanism based on the mobilisation of the citizens at
European scale; it has a truthful potential to change the existing relations between the European civil society and EU institutions by making them more opened and cooperative and
finally, although this mechanism exists in different constitutional European or American
systems, it does not exist in the international arena, so far82.
Eventually, to have a complete image of this topic, in the following we will present few of the successful initiatives that have already collected the minimum number of
signatures in at least seven Member States and in the same time more than one million
signatures, which demonstrates the strong political intention of the citizens to change
something at the European level for their own good and for the future generations, and
the efficient organization of the citizens’ committees that have conducted intense awareness campaigns in written and digital media and have organised meetings, workshops and
seminars explaining the aim, the objectives and the target groups of their initiatives being
led by the motto “we can change something for ourselves and for the rest of the citizens”.
Thus, the first initiative that has reached the target imposed by the ECI Regulation before its deadline 1 November 2013 is “Right2Water”, who consider “water and
sanitation as a public good83”. It was registered on 10 May 2012, having as main scope “to
propose legislation implementing the human right to water and sanitation as recognised
by the United Nations, and promoting the provision of water and sanitation as essential
public services for all”. The initiative has been drafted and then translated in 24 languages,
collecting at the end 1.857.605 of signatures, which have been verified and certified by the
relevant national authority, in accordance with the provisions of the Regulation.
As the result has been positive, the initiative was forwarded to the European Commission which until 10 March 2014 will examine it and will decide how to react, including
asking for more information if applicable, or in the worst case, will reject the initiative, for
the reasons mentioned in the present paper. Meanwhile, a public hearing in this case took
place on 17 February 2014 at the premises of the European Parliament, being chaired by the
Environment Committee, involving the Petitions Committee (PETI), the Internal Market
and Consumer Protection Committee (IMCO), and the Development Committee (DEVE).
The second successful initiative registered on the website of the European Commission on 11 May 2012 is “One of us84”, seeking to end EU financing of activities which
presuppose the destruction of human embryos. It collected 1.897.588 signatures until 1
November 2013 in 20 Member States, due to its good organization and efficient awareness campaigns made by the organizers, being considered “a historical step forward in the
protection of life in Europe85”. It was supported by many non-governmental organizations,
churches, politicians, members of the European Parliament and civil society leaders, while
82
GARCÍA (2013) p .6.
http://ec.europa.eu/citizens-initiative/public/initiatives/ongoing/details/2012/000003; http://www.
right2water.eu/ (accessed February 17th, 2014).
84
It was registered initially in Italian, and then translated in other 23 languages. For more details see http://
ec.europa.eu/citizens-initiative/public/initiatives/finalised/details/2012/000005; http://www.oneofus.eu/.
85
http://www.oneofus.eu/initiative-explanation/ (accessed February 17th, 2014).
83
1009
1010
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its goal is “to greatly advance the protection of human life from conception in Europe –
within the possibilities of the competency of the EU”. So far, a public hearing in the European Parliament has not been established, which makes us to believe that soon after the 1
March 2014, such hearing might take place.
Finally the last initiative that collected 1.326.807 signatures is “Stop Vivisection86”,
having as main purpose to eliminate as much as possible the animal experimentation.
Thus, the initiative, translated in all 24 languages and supported by many NGOs in the
field of protection of animals, including the Brigitte Bardot Foundation, “gives citizens
the opportunity to say “No” to animal experimentation and asking [in the same time] the
European Commission to abrogate” in a urgent manner “the Directive 2010/63/EU on
the protection of animals used for scientific purposes87 and to present a new proposal that”
prohibits “animal experimentation” and “to take into consideration a different scientific
approach, geared to protect human beings and animals’ rights”. Similar to the “One of us”
initiative, a public hearing in the European Parliament has not been established, which
makes us to believe that soon after the 1 March 2014, such hearing might take place.
The successful of the three initiatives, briefly described above, to collect the minimum number of signatures and more than that made the Vice-President Maroš Šefčovič to
say that: “I am greatly encouraged by the fact that three such diverse ECIs may have passed
the threshold of success. It proves that this very ambitious and unique experiment in transnational participatory democracy has captured the imagination of people across Europe”.
IV. CONCLUSIONS
The goal of the present study was to analyze the beginnings of the European citizenship and the long way of regulating such benefit for citizens, economic, political and social
speaking, as well as the evolution of the political rights of the citizens from recognizing few
political rights (the right to vote in the direct suffrage, the right to petition) to the newest
political right enshrined in a treaty, namely the right to initiative, strengthening thus the
participation of citizens in the European political life and a normal development of the European civil society.
After the failure of the Convention on the Future on Europe from 200288, known as
the European Convention, which stipulated for the first time the right to initiative for citizens in former Article 4589 (The principle of representative democracy), the Lisbon Treaty
86
http://ec.europa.eu/citizens-initiative/public/initiatives/finalised/details/2012/000007; http://www.
stopvivisection.eu/ (accessed February 17th, 2014).
87
It was published in JOUE L 276 of 20.10.2010,
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2010:276:0033:0079:en:PDF (accessed February
17th, 2014).
88
This Convention was a body established by the European Council in December 2001 to produce a draft
Constitution for the European Union for the Council to finalise and adopt and finished its work in July 2003
with their Draft Treaty establishing a Constitution for Europe.
89
According to this article “every citizen shall have the right to participate in the democratic life of the Union.
Decisions shall be taken as openly as possible and as closely as possible to the citizen”.
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represents the second major European treaty that recognises doubtfully and clear this normal political right by adopting, within its secondary legislation, the Regulation (EU) n
211/2011, as a brand new transnational instrument, with principal goal to consolidate
democracy in Europe, its democratic values and foundations.
From other perspective, we strongly believe that the proper implementation of this
instrument will bring only benefits both for the European Union, as an entity, and for
almost 502 million citizens, which starting with 1 April 2012 are acting as “partners”, as
we prefer to say, in the European legislative process, but not as main actors, by promoting
relevant initiatives for the European civil society, with cross-border element, and encouraging debates on issues in various fields of activity, such as: education, environment, taxes,
economy, etc.
From the perspective of the democratic theory, the European Citizens’ Initiative is
important for the society because it is often claimed that the European Union suffers from
a democratic deficit which is considered to have its basis both in a community deficit and
in a demos deficit.
Analysing the present paper, one question raised, whether this instrument can have
the power to contribute in a decisive manner to the trans-European debates on the Union
issues beyond the reticence attitude existed until the adoption of the Regulation (EU) nº
211/2011, as concern the active involvement of the citizens90. Responding to this question,
we believe that if this new democratic tool will be implemented properly, with no gaps or
other shortcomings, it will have all the chances “to become a policy-creating instrument
that will [change the citizens’ life in a better and efficient way and will also] improve citizens’ influence in the EU political context by reinforcing the exchange of civic competence
and fostering civic inclusion at a supranational level91”.
Finally, the last part of the research paper analysed certain successful initiatives that
have already collected the number of signatures stipulated by the Regulation, hoping that
in the coming weeks other initiatives will gather this minimum number and will be send to
the European Commission, taking into account that each of them can change the present
life of the European society, can bring something new to the Europeans’ life, in order to
make it simpler, clearer, wealthier, healthier and better.
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